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protecting historic properties
and Cultural Traditions
in the Freely Associated States
of Micronesia
a Report on cultural Resource Management Needs in the
Republic of the Marshall islands, the Federated States of
Micronesia, and the Republic of Palau
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APR
4 1995
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Digitized by the Internet Archive
in 2012 with funding from
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-MlCRONESIAH RESOURCES STUDY
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7
i
Protecting Historic Properties and Cultural
Traditions in the Freely Associated States
j
of Micronesia
A Report on Cultural Resource Management Needs in -^
Stitf fee]
the Republic of the Marshall islands, the Federated States of Micronesia,
and the Republic of Palau
2r%**Sp
.
March 1994
United States Department ofthe Interior • National Park Service
Interagency Resources Division • Preservation Planning Branch
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Paddlingcanoes (waafetun) carvedfrom breadfruit treesarestill usedatNakuna, borderingPwenevillage, Tonowas Island, Chuuk State,
FederatedStates ofMicronesia, (photograph byJohn Young, NancyRosenberger, andJoeHarding, 1989)
Orthographic Note:
Duringthe 1960s and 1970s, a series ofdictionaries and reference grammars were developed bythe UniversityofHawaii for
the Department ofEducation ofthe TrustTerritoryofthe Pacific Islands. As part ofthis process, neworthographies for spelling
Micronesianwords, were developed throughout the FreelyAssociated States ofMicronesia. These orthographies are in varying
stages ofacceptance amongthe islands, but are generallybecoming standardized through the public school systems. Ofimportance
here is that members ofthe older generationwho are the culture bearers and naturallythose sought out for information in projects
like this, are generally not familiarwith the "newspelling." Since most ofthe scholars involved in the Micronesian Resources Study
were neither speakers ofMicronesian languages or familiarwith current efforts to standardize the spelling ofMicronesian lan-
guages, no attemptwas made to require them to do so within the time and funding constraints ofthis project. Spellings throughout
are as the ethnographers and archeologists recorded them in the field.
This summaryreportofthe Micronesian Resources Studywas compiled and written by Patricia L. Parker, DeputyChief,
Preservation Planning Branch, Interagency Resources Division, National Park Service, Washington, D.C. This publication is largely
based upon the workand research of 17 scholars and Project Director, Dr. Michael Evans. Participating scholars are listed in
J.
Table 1 and are acknowledged throughout. Dr. Parkerwas the National Park Service liaison officer forthe project.
o? Contents
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V
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Summary—
Executive
Part1: Introduction
The Mandate
Properties Eligible forthe National Register ofNatural Landmarks and the National Register
ofHistoric Places
Historic Preservation from a Micronesian Perspective / •-'«• i Ji >
The Role ofthe Micronesian Endowment for Historic Preservation
Conductingthe Micronesian Resources Study
Objectives ofthe Study
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Data BasesforPlanning
PilotStudies Responsive to LocalNeeds
ResearchAreasDefined byLocal Priorities y
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Research Designs ReflectingMicronesian Perspectives
TrainingforMicronesian Historic Preservation Officers
Model Local Consultation ProcessesforCommunityParticipation
Public Education on ProtectingM—icronesian Historical and Cultural Resources
Part 2: Results of the Study The Database
—
Part 3: Results of the Study The Pilot Studies -l"T7 ••**>''• .1Y'5•i• r•-
Republic ofthe Marshall Islands: Taroa in MaloelapAtoll
ArcheologicalSurveyon Taroa
Documenting Tama's Cultural Traditions
Model Consultation Processes **&*£
-.;
Recommendationsforthe Protection and Use ofMarshall Island's Historic Properties and Cultural
Traditions
Pilot Studies in the Federated States ofMicronesia
Kosrae, Federated States ofMicronesia
ArcheologicalSurvey in the Malem Municipality, Kosrae
DocumentingKosrae's Cultural Traditions
ModelLocal Consultation Process
Recommendationsforthe Protection and Use ofKosrae's Historic Properties and Cultural Traditions
Pohnpei, Federated States ofMicronesia
Archeological andEthnographic Studies in Salapwuk, KitiDistrict
Model Local Consultation Process
Recommendationsforthe Protection and Use ofPohnpei'sHistoric Properties and Cultural Traditions
' A -
*
V
' / Chiiuk, Federated States ofMicronesia
Arcfceologica/ Training in Pwene Village, Tonowas Island
, \yS• \r *t Ethnographic Survey
•'•s tit ;y^\ Jj Mode/ Loca/ Consultation Process
A£» ,^5 v^- •• Recommendationsforffoe Protection ana" Use ofChuuk's Historic Properties and Cultural Traditions
—
3 Chuuk's UnderwaterMuseum The SunkenJapanese Ships
«
. £ Recommendations forProtecting tfec Sunken Ships
*:> .jp, • . ^iji Yap State, Federated States ofMicronesia
Archeological Survey
Documenting Yap's Cultural Traditions
X
.' f'J?,'"* !£ Mode/ Consu/tation Process
-"*.>"V£,••>.- v Recommendations fortfce Protection and L/se ofYap's Historic Properties and Cultural Traditions
Republic ofPalau
t*lJjjjj* x'j.' Goa/s oftfceArcheological Survey
""*,V*£f«V" Recommendationsforthe Protection and Use ofPalaus Historic Properties
''-'&1j*£'3?', a DocumentingPalaus Cu/tura/ Traditions
* *
>c^T.i/ r. I Recommendationsfortfce Protect—ion and Use ofPalaus Cultural Resources
Part 4: Results of the Study The Preservation Videotape Presentation
^ —
-v;•;'., "
Part 5: Results of the Study The Model Consultation Processes
kt-\ -7'"-•"flT Model Consultation Processes inthe Republic ofthe Marshall Islands
ii-£>'^-[-;.'«•_tfy Model Consultation Processes in the Federated States ofMicronesia
?'*"''.•'' *-.*•*"*t Kosrae
V
&$&£ Pofcnpei
Cfcuiife
Yap
v^v j.^". JC" Model Consultation Process in the Republic ofPalau-
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,*'J"V''^ SMi Differences and Commonalities
;"5 r" Part 6: Further Aqions by the U.S. Government
-•*
Actions Planned by the NationalPark Service
St., " *•". -.'. Recommendations to theAdvisory Council on Historic Preservation
!v^5Vfj»ZS.>-' Recommendations to Otfcer U.S. Agencies
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Recommendations to the U.S. Congress
Part 7: Recommendations to the Governments of the Freely Associated
- s.r%-<:< States of Micron
^
L;c ji*o**£i Recommendations
'V'-^j'- ' '-"' Conclusions
=: 8&S& References Cited
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NUMMARY
&XECUTIVE
H n 1986, Congress enacted legislation (Pub. L. 99-658) approvingthe Compact ofFree
ImIm\ Association between the United States and the Republic ofPalau. Section 104(b) ofthis bill
I
directed the National ParkService to conduct "a comprehensive inventoryand studyofthe
HI most unique and significant natural, historical, cultural, and recreational resources ofPalau,
I^J the Federated States of Micronesia, and the Republic of the Marshall Islands." In 1988,
——
Congress appropriated $750,000 fromthe Historic Preservation Fund to allowthe National
V
Park Service to undertake this study, which came to be referred to as the Micronesian Resources <*•' ' • -
Study. .y*vv,' ••• r '
To ensure thatthe studywas trulyMicronesian, and ofmaximum usefulness tothe Micronesian
governments, the National Park Service entered into a cooperative agreementwiththe Micronesian
Endowment for Historic Preservation, a non-profit corporation dedicated to historic preservation in
Micronesia, whose board ofdirectors comprise the Historic Preservation Officers ofthe Republic of
Palau, the Republic ofthe Marshall Islands, the Federated States ofMicronesia, the four states ofthe
Federated States ofMicronesia, Guam, and the Commonwealth ofthe Northern Mariana Islands.
Since itwas not feasible to conduct a trulycomprehensive studyofthe full range ofresources with
the available funds, and because the funds appropriated were fromthe Historic Preservation Fund, the
National Park Service and the Micronesian Endowment for Historic Preservation focused on identify-
ingthe classes ofcultural resources that should be addressed in ongoinginventories. These are oftwo
—
types: historic and prehistoric archeological resources, and ethnographic resources that is, the tradi-
tions andvalueswhich give significance to both historic properties and manynatural resources inthe
eyes ofMicronesians. The Micronesian Resources Studywas also designed to provide trainingto
Micronesian Historic Preservation Office personnel in conducting inventoryresearch, and to address
geographic areas assigned prioritybythe Micronesian governments because oftheir cultural signifi-
cance and/orperceived developmentpressure.
In each ofthe Micronesianjurisdictions (the Republic ofPalau, each ofthe four states ofthe
Federated States ofMicronesia, and the Republic ofthe Marshall Islands), the Micronesian Resources
Studyundertookto accomplishthe following.
1. Establish a user-friendlyelectronic database that could be used bythe Micronesian Historic
Preservation Officers to store data on archeological and ethnographic resources and apply
these datato land use and development planning.
2. Through contractswith a numberofacademic institutions and organizations, carryout pilot
projects in archeological and ethnographic resource identification and management, in loca-
tions selected byMicronesian officials based on local priorities.
3. Coordinate the archeological and ethnographic work and ensure thatboth reflected local
perspectives.
4. Train Micronesian Historic Preservation Office staffto use the database andto conduct
inventoryresearch.
5. Produce a model process bywhich national, state, and local governments can consultwith
local groups aboutthe cultural resource management concerns.
In addition, the Micronesian Resources Studyproduced two educationalvideotapes for use in
Micronesia and elsewhere. Yesterdayand Tomorrow: Historic Preservation in Micronesia is an overviewof
the importance ofMicronesia's cultural resources. Chuuk Lagoon: UnderwaterMuseum is a documen-
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VI
taryon one ofMicronesia's most famous and threatened cultural resources: the sunkenJapanese fleet
in Chiiuk Lagoon.
The Database
The Micronesian Resources Studydatabase was put on-line in all ofthe Micronesian Historic
Preservation Offices, usinghardware and software compatible with the computer systems thatwere
eitheron-line orbeingestablished for government-wide use byall three governments. The content of
the database varies from island group to island group, dependingon the workthatwas feasible atthe
time ofthe study. In most cases a large volume ofarcheological data has been entered, togetherwith a
substantial bodyofethnographic data. Ethnomusicological and ethnobotanical data have been entered
in some cases, butto a much smallerdegree. Further development ofthe database, and linking itto
computer-based planningsystems, would be desirable butwas not completed within the constraints of
Micronesian Resources Study funding.
The Pilot Studies
Inthe Republic ofthe Marshall Islands, the pilot studies in both archeologyand ethnography
addressedTaroa Island in MaloelapAtoll, where a newatoll capital is to be established. The archeolog-
ical study identified a numberoftraditional Marshallese sites as well as a rich profusion ofWorldWar
II structures and other remains. The ethnographic studyfocused on traditional uses ofnatural
resources and the development ofa local consultation process.
In Kosrae State in the Federated States ofMicronesia, the pilot project in archeologywas a survey
ofLela and Mosral in Malem Municipality, coupledwith training in archeological surveyand test exca-
vation. The surveyrevealed an extensive complex ofruins at Lela, identified in oraltradition as a resi-
dence ofthe local LowChiefand apparentlyoccupied duringthe 17th and 18th centuries. Another
site is a stone walled enclosure datingtothe 15th centuryA.D. The ethnographic studywas coordinat-
edwiththe archeologicalwork, and included a majorvideographic component. Kosrae Historic
Preservation Office staffwere trained in the use ofvideotape equipmentto documenttheirown cultur-
al institutions. The model local consultation processwas closelycoordinatedwith existing Kosrae state
lawregarding reviewofimpacts on cultural resources.
In Pohnpei State inthe Federated States ofMicronesia, no separate ethnographic studywas com-
pleted, butthe archeological study included a major ethnographic element, andwas directed by
Micronesia's first Ph.D. archeologist, Rufino Mauricio. The study focused on Salapwuk, an interior
area ofgreat importance in Pohnpeian oral historyand traditional religion. Through extensive oral his-
toricalworkand field survey, despite verydifficultterrain, the surveyteam documented 41 locations of
historic and cultural importance, while obtainingconsiderable information on local beliefs about the
ownership and protection ofsuch resources, and about potential threats to their integrity. Pohnpeian
Historic Preservation Office staffwere trained in ethnographic and archeological survey methods, and
appropriate ways ofconsultingwith local cultural authoritieswere outlined in the surveyreport.
In Chiiiik State in the Federated States ofMicronesia, archeological and ethnographic surveys
were performed in Pwene village on Tonowas Island, where the state government hopes to establish a
historical park. The archeological survey identified awide range ofWorld War II-eraJapanese struc-
tures and other facilities, as well as two sites that figure inthe island's traditional oral history. The
ethnographic studyemphasized determiningwhat activities on the land the local people regarded as
important, so thatthese perceptions could be integrated into park planning for interpretation and use.
Amodel consultation process emphasizingthe reviewofimpacts on cultural resources in consultation
with local political and traditional authorities was developed.
Aseparate project in Chiiuk addressed the famous "Underwater Fleet" ofJapanese ships sunk in
WorldWar IPs Operation Hailstorm. Recommendations were developed for management ofthis
— —
resource world renowned as a recreational diving site and avideotape was produced interpreting
it and encouragingthe preservation ofits fragile components.
InYap State in the Federated States ofMicronesia, the archeological pilot projectwas a surveyof
Gachlawvillage in Gilmon Municipality, a traditionallylow-ranking inland village representing a kind
VII
ofarea not previouslygiven much attention byarcheologists inYap. Although oral history suggested
that only seven house sites would be found in Gachlaw, the surveydocumented 41 separate sites
includinghouse platforms, a meetinghouse ruin, and a cemetery. Evidence ofrecent unauthorized
archeological excavationswas also observed, togetherwith indications that U.S. militaryCivicAction
Teams have been conductingconstruction projects that have damaged historic properties.
The ethnographic studyonYapwas developed and carried out bytheYap Cultural Inventory
Group, a nonprofit organization made up ofteachers, local scholars, and government officials dedicat-
ed to studyingcultural change and helpingtheYapese people control such change. The studydocu-
mented public attitudes toward change in avarietyofcultural institutions, and developed a model
consultation process to be usedwhenevera project might result in cultural change or impacts on cul-
tural resources. The process describes howto identifythosewho should be consulted, howto conduct
consultation, and howto settle disputes.
In Palau the archeological studyhad three goals: to compile standardized information on all
recorded archeological sites for Patau's component ofthe Micronesian Resources Studydatabase; to
develop recommendations for making informed decisions aboutcultural resources; and to conduct lim-
ited surveyfieldwork inthe states ofNgatpangand Ngeremlengui. Seven hundred and eightyarcheo-
logical sites were entered inthe database, and recommendations were developed for each ofPatau's 16
states, in each case describingwhat is known aboutthe state's archeological resources, recommending
how incomplete information can be supplemented, and providing management recommendations.
The ethnographic study in Palau hadthree goals: to translate into English a studyofPalau's his-
toryand culture written by Palau's National Treasures, a group oftraditional historians; to conduct
original research in Ngatpangand Ngeremlengui; andto prepare a local consultation process. The
translation represents a consensus ofPalauan elders about manyofthe cultural concerns around which
Palauan societyis organized. The local consultation process identifies a range ofresource types about
which information should be gathered and concerns addressedwhen planninga project in Palau.
The Consultation Processes
The local consultation processeswere an especially important part ofthe Micronesian Resources
Study, since theyare designedto ensure thatlocal Micronesian communities and individuals are given
the opportunityto affect United States and Micronesian governmental actions that can affecttheircul-
tural resources. The processes designed expectablyvaryfrom island groupto island group.
Inthe Republic ofthe Marshall Islands, where the Historic Preservation Office is assigned consid-
erable authoritybystatute, the local consultation process emphasizes the Historic Preservation
Office's role in mediating conflicts between local cultural interests and the interests ofproject propo-
nents.
In Kosrae, which also has a strong historic preservation law focussingonthe authorities ofthe
Kosrae Museum, the local consultation process emphasizes the development ofa network oflocal
experts who canadvise the Museum about cultural concerns.
In Pohnpei, the pilot project reportwarns that some cultural resources can be perceived to have
such powerthattheirdisturbance can cause profound communitydisruption. It recommendsways to
ensure thatculturallyappropriate authorities are consulted in planninganyproject that might result in
such disturbance.
In Chiiiik, the local consultation process is based onthe premise that procedures must be consis-
tentwithtraditionalways ofpreserving cultural resources. It defines a step-by-step procedure for iden-
tifyingand resolvingconflicts between development and cultural resource interests in a manner
consistentwithtraditional systems ofdispute resolution.
InYap, the Cultural InventoryGroup proposed thatthe State Office ofPlanningand Budgetbe
chargedwith the conduct oflocal consultation amonglandowners, traditional chiefs, and the govern-
ment. These groups are not easilydefined, because land is held in avarietyofways and there are sev-
erallevels ofchieftainship. The local consultation process spells outways to accommodate this
complexity.
viii
In Palau, the local consultation process uses the U.S. Secretary'ofthe Interior's Standards and
Guidelines for Historic Preservation Planningas an organizingtool, identifies techniques for identify-
ingand resolvingdisputes, and recommends mediation where necessaryto beingconflicts to resolu-
tion.
Althoughthere are differences amongthe consultation processes, all share certain commonalities.
1. Local communities must be consulted earlyin project planning.
2. Consultation should employapproaches that are consistentwith local culturalvalues, beliefs,
and etiquette.
3. Local people should be helped to understand whattheiroptions are.
4. An appropriately empowered government entity should initiate consultation in accordance
withwritten procedures.
Recommendations to the U.S. Government
The National Park Service. Based onthe results ofthe Micronesian Resources Study, and as appropria-
tions permit, the National Park Service will do the following.
1. Use the local consultation processes developed bythe Studyto helpthe Historic Preservation
Officers establish historic preservation priorities and implement historic preservation pro-
grams.
2. Provide furthertraining in database use and maintenance to Historic Preservation Officers
andtheir staff, and other potential users.
3. Help Historic Preservation Officers establish links between theirdatabases and governmental
systems ofplanning, land use and regulation.
4. Conduct focused interdisciplinarystudies to identifyand evaluate Micronesian historic prop-
erties and culturaltraditions.
5. Use the results ofthe Studyto carryout responsibilities assigned tothe National Park
Service bythe 1992 amendments to the National Historic PreservationAct.
TheAdvisory Council On Historic Preservation. TheAdvisoryCouncil on Historic Preservation should
address specificallyhow Section 106 ofthe National Historic PreservationAct should be implemented
in Micronesia, with reference to the local consultation processes defined bythe Micronesian Resources
Study.
Other FederalAgencies: Other Federal agencies should use the results ofthe Micronesian
Resources Study, includingthe local consultation processes, to ensure thattheirplanning systems are
sensitive tothe area's cultural resources.
Congress. Congress can help preserve Micronesia's cultural resources in the followingways.
1. Encourage the Micronesian governments to address the preservation and wise use ofcultural
resources in theireconomic development planning underthe Compacts ofFreeAssociation.
2. Considerappropriatingthe funds necessaryto complete the Micronesian Resources Study
database and to link it to governmental planningsystems.
3. Consider helpingthe Micronesian Endowment for Historic Preservation establish an endow-
mentfund to support preservation ofcultural resources.
Recommendations to the Micronesian Governments
1. Considerand make wise use ofcultural resources in economic development.
2. Increase support forthe Micronesian Historic Preservation Office Programs.
3. The Micronesian governments should help developthe Micronesian Resources Study data-
base into an effective planningtool, and ensure that cultural resources are appropriatelycon-
sidered in all types ofplanning.
4. The Micronesian governments should consider collective and individual support forthe
Micronesian Endowment for Historic Preservation through direct financial contributions,
